[Federal Register Volume 78, Number 67 (Monday, April 8, 2013)]
[Proposed Rules]
[Pages 20832-20842]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2013-08073]
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DEPARTMENT OF ENERGY
10 CFR Parts 429 and 430
[Docket No. EERE-2011-BT-TP-0061]
RIN 1904-AC65
Energy Conservation Program for Consumer Products and Certain
Commercial and Industrial Equipment: Test Procedures for Showerheads,
Faucets, Water Closets, Urinals, and Commercial Prerinse Spray Valves
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Supplemental notice of proposed rulemaking.
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SUMMARY: The U.S. Department of Energy (DOE) proposes amendments to its
May 2012 notice of proposed rulemaking related to DOE test procedures
for showerheads, faucets, water closets, urinals, and commercial
prerinse spray valves. The amendments proposed in this supplemental
notice of proposed rulemaking include revisions to the definitions of
showerhead and hand-held showerhead; removal of body sprays from the
proposed showerhead definition; requirements pertaining to testing of
showerheads that are components of shower towers; a standardized test
method to be used when verifying the mechanical retention of a
showerhead flow control insert when subjected to 8 pounds force;
clarification of permissible trim adjustments for tank-type water
closets; and amendments to the required static test pressures to be
used when testing flushometer valve siphonic and blowout water closets.
DOE also proposes further clarification of the definition of basic
model with respect to flushometer valve water closets and urinals, as
well as associated changes to certification reporting requirements for
these products.
DATES: DOE will accept comments, data, and information regarding this
SNOPR no later than May 8, 2013. See section IV, ``Public
Participation,'' for details.
ADDRESSES: Interested parties may submit comments, identified by docket
number EERE-2011-BT-TP-0061 or Regulation Identifier Number (RIN) 1904-
AC65, by any of the following methods:
1. Federal eRulemaking Portal: http://www.regulations.gov. Follow
the instructions for submitting comments.
2. Email: PlumbingPrds-2011-TP-0061@ee.doe.gov. Include the docket
number and/or RIN in the subject line of the message.
3. Mail: Ms. Brenda Edwards, U.S. Department of Energy, Building
Technologies Program, Mailstop EE-2J, 1000 Independence Avenue SW.,
Washington, DC 20585-0121. If possible, please submit all items on a
CD. It is not necessary to include printed copies.
4. Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department of
Energy, Building Technologies Program, 950 L'Enfant Plaza SW., Suite
600, Washington, DC 20024. Telephone: (202) 586-2945. If possible,
please submit all items on a CD. It is not necessary to include printed
copies.
For detailed instructions on submitting comments and additional
information on the rulemaking process, see section IV of this document
(``Public Participation'').
Docket: The docket, including Federal Register notices, public
meeting attendee lists and transcripts, comments, and other supporting
documents/materials, is available for review at regulations.gov. All
documents in the docket are listed in the regulations.gov index.
However, not all documents listed in the index may be publicly
available, such as information that is exempt from public disclosure.
A link to the docket Web page can be found at: http://www.regulations.gov/#!docketDetail;dct=FR%252BPR%252BN%252BO%252BSR%252BPS;rpp=10;po=0;D=EER
E-2011-BT-TP-0061. This Web page will contain a link to the docket for
this notice on the regulations.gov site. The regulations.gov Web page
will contain simple instructions on how to access all documents,
including public comments,
[[Page 20833]]
in the docket. See section IV, ``Public Participation,'' for
information on how to submit comments through regulations.gov.
For further information on how to submit a comment, review other
public comments and the docket, contact Ms. Brenda Edwards at (202)
586-2945 or by email: Brenda.Edwards@ee.doe.gov.
FOR FURTHER INFORMATION CONTACT:
Mr. Lucas Adin, U.S. Department of Energy, Office of Energy Efficiency
and Renewable Energy, Building Technologies Program, EE-2J, 1000
Independence Avenue SW., Washington, DC 20585-0121. Telephone: (202)
287-1317. Email: Lucas.Adin@ee.doe.gov.
Ms. Jennifer Tiedeman, U.S. Department of Energy, Office of the General
Counsel, GC-71, 1000 Independence Avenue SW., Washington, DC 20585-
0121. Telephone: (202) 287-6111. Email: Jennifer.Tiedeman@hq.doe.gov.
SUPPLEMENTARY INFORMATION:
I. Background and Authority
A. Authority
B. Background
C. General Test Procedure Rulemaking Process
II. Discussion
A. DOE Test Procedures for Plumbing Products
1. Definitions
2. Test Procedure for Showerhead Flow Control Insert
a. Pulling-Force Test
b. Gravity Test
c. Conclusions Based on DOE Testing
3. Test Procedure Amendment for Supply Fittings With Integral
Body Sprays
4. Test Procedure Amendments for Gravity Flush Tank Water Closet
Trim Adjustments
5. Static Test Pressure for Flushometer Valve Siphonic and
Blowout Water Closets
6. Testing and Reporting of Dual-Flush Water Closets
B. Supplementary Plumbing Requirements
1. Definition of a Basic Model for Water Closets and Urinals
2. Minor Editorial Changes
III. Procedural Issues and Regulatory Review
IV. Public Participation
A. Submission of Comments
B. Issues on Which DOE Seeks Comment
V. Approval of the Office of the Secretary
I. Background and Authority
A. Authority
Title III, Part B of the Energy Policy and Conservation Act of 1975
(EPCA), Public Law 94-163 (42 U.S.C. 6291-6309, as codified),
established the Energy Conservation Program for Consumer Products Other
Than Automobiles, which includes the showerheads, faucets, water
closets, and urinals that are the subjects of today's notice.\1\
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\1\ For editorial reasons, upon codification in the U.S. Code,
Part B was redesignated Part A.
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Under EPCA, this program consists essentially of four parts: (1)
Testing, (2) labeling, (3) Federal energy and water conservation
standards, and (4) certification and enforcement procedures. The
testing requirements include test procedures that manufacturers of
covered products must use as the basis for (1) certifying to the DOE
that their products comply with applicable energy and water
conservation standards adopted under EPCA and (2) making
representations about the energy or water consumption of those products
on labels and other materials. Similarly, DOE must use these test
procedures to determine whether the products comply with any relevant
standards promulgated under EPCA.
B. Background
EPCA states that the procedures for testing and measuring the water
use of faucets and showerheads shall be American Society of Mechanical
Engineers (ASME) Standard A112.18.1M-1989, ``Plumbing Fixture
Fittings,'' and the test procedure for water closets and urinals shall
be ASME Standard A112.19.6-1990, ``Hydraulic Requirements for Water
Closets and Urinals.'' EPCA further specifies that if ASME revises
these requirements, the Secretary of Energy (Secretary) shall adopt
such revisions if they conform to the basic statutory requirements for
test procedures. (42 U.S.C. 6293(b)(7)-(8)) DOE last amended test
procedures for these products in a final rule published in March 1998
(March 1998 final rule), which incorporated by reference ASME Standard
A112.18.1M-1996, ``Plumbing Fixture Fittings,'' for showerheads and
faucets, and ASME Standard A112.19.6-1995, ``Hydraulic Performance
Requirements for Water Closets and Urinals,'' for water closets and
urinals. 63 FR 13308 (March 18, 1998). Since publication of the March
1998 final rule, ASME has revised both procedures and harmonized them
with the corresponding standards of the Canadian Standards Association
(CSA). ASME and CSA issued the most recent version for showerheads and
faucets in June 2011 as ASME A112.18.1-2011/CSA B125.1-11, ``Plumbing
Supply Fittings,'' and issued the most recent version for water closets
and urinals in August 2008 as ASME A112.19.2-2008/CSA B45.1-08,
``Ceramic Plumbing Fixtures.'' These standards are referred to in this
notice as ASME A112.18.1-2011 and ASME A112.19.2-2008, respectively.
On May 30, 2012, DOE issued a notice of proposed rulemaking (the
May 2012 NOPR) proposing to amend the test procedures for showerheads,
faucets, water closets, and urinals to incorporate by reference, with
the exception of certain provisions regarding rounding of measured
values, ASME A112.18.1-2011 and ASME A112.19.2-2008. 77 FR 31742,
31744. DOE also proposed to update its reference to the latest version
of the ASTM International (ASTM) standard for commercial prerinse spray
valves by incorporating by reference ASTM Standard F2324-03 (2009),
``Standard Test Method for Prerinse Spray Valves.'' 77 FR at 31744. In
the May 2012 NOPR, DOE also proposed additional provisions, including
test procedures for measuring representative average flush volume for
dual-flush water closets; requested comments on the standardized test
method for showerhead flow control insert retention requirement;
proposed definitions related to showerheads, body sprays, and hand-held
showerheads; and proposed clarifications to the basic model definition
with respect to water closets and urinals. 77 FR at 31746-31748.
In response to DOE's proposed test procedure amendments, as
presented in the May 2012 NOPR, several interested parties provided
comments. DOE has considered all submitted comments and conducted
additional analyses in preparation of a revised proposal to amend the
test procedures for showerheads, faucets, water closets, and urinals,
as presented in this supplemental notice of proposed rulemaking
(SNOPR). A more detailed discussion of the comments received and DOE's
response is provided in section II, ``Discussion.'' This SNOPR
addresses only proposed modifications to its earlier proposal and those
comments received in response to the NOPR that are relevant to the
proposed changes. All other comments received regarding the May 2012
NOPR will be addressed in the test procedure final rule.
In this SNOPR, DOE proposes to revise the definitions of showerhead
and hand-held showerhead; proposes to remove body sprays from the
definition of the term showerhead proposed in the NOPR; proposes a
standardized test method for the mechanical retention of a showerhead
flow control insert when subjected to 8 pounds force (lbf); provides
clarification of allowable trim adjustments for gravity flush tank
water closets; and proposes amendments to the required static test
pressures when
[[Page 20834]]
testing flushometer valve siphonic and blowout water closets. DOE also
proposes further clarification of the definition of basic model with
respect to flushometer water closets and urinals, as well as associated
changes to certification reporting requirements, including specific
provisions regarding the testing and reporting of dual-flush water
closets.
C. General Test Procedure Rulemaking Process
In 42 U.S.C. 6293, EPCA sets forth the criteria and procedures DOE
must follow when prescribing or amending test procedures for covered
products. EPCA provides, in relevant part, that any test procedures
prescribed or amended under this section shall be reasonably designed
to produce test results that measure energy efficiency, energy use,
water use (in the case of showerheads, faucets, water closets, and
urinals), or estimated annual operating cost of a covered product
during a representative average use cycle or period of use and shall
not be unduly burdensome to conduct. (42 U.S.C. 6293(b)(3))
In addition, if DOE determines that a test procedure amendment is
warranted, it must publish proposed test procedures and offer the
public an opportunity to present oral and written comments on them. (42
U.S.C. 6293(b)(2)) Finally, in any rulemaking to amend test procedures,
DOE must determine to what extent, if any, the proposed test procedures
would alter the measured energy efficiency of any covered product as
determined under the existing test procedures. (42 U.S.C. 6293(e)(1))
If DOE determines that the amended test procedures would alter the
measured efficiency of a covered product, DOE must amend the applicable
energy conservation standard accordingly. (42 U.S.C. 6293(e)(2))
Any representation as to the water consumption of the products that
are the subjects of this rulemaking made 180 days after the date of
publication of an amended test procedure final rule must be based upon
results generated under the applicable provisions of any amended test
procedures. (42 U.S.C. 6293(c)(2)) However, the 180 day period may be
extended for an additional 180 days if the Secretary determines that
this requirement would impose an undue burden. (42 U.S.C. 6293(c)(3))
Upon the compliance date(s) of any amended water conservation
standard(s) for faucets and showerheads, use of the applicable
provisions of the amended test procedures to demonstrate compliance
with the water conservation standard(s) will also be required.
II. Discussion
On July 24, 2012, DOE held a public meeting to discuss proposed
amendments to the test procedures for showerheads, faucets, water
closets, and urinals presented in the May 2012 NOPR. During the public
meeting, and in subsequent written comments, interested parties
provided DOE with feedback on the proposed test procedure amendments.
These comments are available for viewing in the public docket for this
rulemaking (Docket No. EERE-2011-BT-TP-0061). Comments from interested
parties addressed in this SNOPR involve the following issues:
1. DOE's definitions of showerhead, body spray, and hand-held
shower;
2. Test procedure requirements for showerhead flow control insert
retention;
3. The definition of basic model with respect to water closets and
urinals;
4. Trim adjustments for gravity flush tank water closets;
5. Static pressures for testing of flushometer valve siphonic and
blowout water closets; and
6. Testing and reporting of dual-flush water closets.
Specific comments received from interested parties and DOE's
responses are set forth in sections II.A and II.B of this document.
A. DOE Test Procedures for Plumbing Products
1. Definitions
In the May 2012 NOPR, DOE proposed a modification to the definition
of ``showerhead'' based on the definition in ASME A112.18.1-2011. DOE's
proposed definition in the May 2012 NOPR stated that a ``showerhead
means an accessory, or set of accessories, to a supply fitting
distributed in commerce for attachment to a single supply fitting, for
spraying water onto a bather, typically from an overhead position,
including body sprays and hand-held showers, but excluding safety
showerheads.'' 77 FR at 31755. DOE proposed this modified form of the
ASME definition to more clearly define the extent of DOE's coverage of
these products, and to clarify that safety shower showerheads are not
covered products, and that hand-held showerheads are covered.
In response, Kohler Company (Kohler) and Sloan Valve Company (Sloan
Valve) recommended that, for consistency with the ASME standard, DOE
should use the showerhead definition found in ASME A112.18.1-2011: ``An
accessory to a supply fitting for spraying water onto a bather,
typically from the overhead position.'' (Kohler, No. 9 at p. 4 Sloan
Valve, No. 12 at p. 3) The National Resources Defense Council (NRDC)
commented that a showerhead should not be defined as an accessory.
(NRDC, Public Meeting Transcript, No. 11 at pp. 54-55)
Comments submitted by Plumbing Manufacturers International (PMI),
Moen Incorporated (Moen), and Kohler stated that body sprays should not
be included in the definition of showerhead because body sprays are not
considered accessories since they cannot be readily added or removed by
the user. (PMI, No. 8 at p. 4; Moen, No. 4 at p. 3; Kohler, No. 9 at p.
4) On the contrary, NRDC supported the incorporation of body sprays in
the showerhead definition. (NRDC, Public Meeting Transcript, No. 11 at
pp. 57-58) The International Code Council (ICC) supported DOE's
proposed showerhead definition and recommended that the term
``showerhead'' be incorporated in the definition of body spray to
clearly indicate that body sprays are considered a form of showerhead.
(ICC, Public Meeting Transcript, No. 11 at pp. 55-56)
DOE has determined that the current ASME showerhead definition,
recommended by Kohler and Sloan, does not sufficiently address DOE's
regulatory coverage of showerheads by not specifically including hand-
held showerheads or excluding safety shower showerheads. Further,
although in the NOPR DOE sought to clarify that body sprays are
showerheads for purposes of regulatory coverage, in light of the
concerns that some commenters have raised regarding the proposal and
DOE's need to further study the issue, DOE withdraws its proposal to
include body sprays in the showerhead definition at this time.
Additionally, based on consideration of the comments received, DOE
proposes in this SNOPR to exclude the term ``accessory'' from the
definition of showerhead, and proposes to define ``showerhead'' as
follows: ``A component of a supply fitting, or set of components
distributed in commerce for attachment to a single supply fitting, for
spraying water onto a bather, typically from an overhead position,
including hand-held showerheads, but excluding safety shower
showerheads.''
Comments were also received from Moen, PMI, Kohler, and Sloan Valve
during the public comment period following publication of the May 2012
NOPR, requesting that DOE incorporate ASME's draft definition of hand-
held showerhead: ``An accessory to a supply fitting, that can be hand-
held or fixed in place for the purpose of spraying water onto a bather,
and which is connected to a flexible hose.'' (Moen, No. 4 at p. 3; PMI,
No. 8 at p. 4; PMI, Public
[[Page 20835]]
Meeting Transcript, No. 11 at pp. 56-57; Kohler, No. 9, pp. 3-4; Sloan
Valve, No. 12 at p. 3) However, DOE believes that incorporating the
phrase ``and which is connected to a flexible hose'' found in the ASME
hand-held showerhead definition restricts the definition because it may
not encompass all hand-held showerhead configurations in the
marketplace. Therefore, in this SNOPR, DOE proposes to define ``hand-
held showerhead'' as follows: ``A showerhead that can be hand-held or
fixed in place for the purpose of spraying water onto a bather.''
In addition, because DOE proposes to exclude body sprays from the
current definition of showerhead, DOE proposes (as explained below) to
revise its test procedure to clarify that body sprays that are
components of ``shower towers'' should be turned off during testing to
permit testing of the integral showerhead(s). For context, DOE
generally understands that the term shower tower is typically used in
reference to single supply fittings that are designed for attachment to
one or more hot and cold water connections in a shower or bath and that
are comprised of at least one showerhead and one or more body sprays,
but that may also include a hand-held showerhead and either a valve for
selecting spraying components, a thermostatic mixing valve, or both.
DOE also seeks to clarify the treatment of other products that are
components of a shower tower but are otherwise covered. Based upon the
description in the previous paragraph, a shower tower would represent a
combined system that delivers water to individual supply fittings
downstream of a temperature mixing valve. If each covered spraying
component is individually isolable from any other covered spraying
component downstream of the mixing valve by a valve or other isolating
device installed within the plumbing system and not within the spraying
device itself, each spraying component represents an individual supply
fitting that is covered separately. This is in contrast to a product
that has multiple spraying components and is designed to be attached to
a single supply fitting downstream of the mixing valve, such as the
threaded overhead pipe in a shower. According to the definition of
``showerhead'' proposed in this notice, such a product would be covered
as a showerhead since it is designed to be attached to a single supply
fitting. The product itself may contain a valve or other device to
isolate its spraying components from each other, but since the spraying
components and diverter device are distributed in commerce together for
attachment as a composite unit to a supply fitting, the product is
distinct from the plumbing system. In the case of the shower tower, the
device that isolates one spraying component from one or more other
spraying components is within the plumbing system, making the spraying
components separate fittings.
Finally, DOE notes that no definition currently exists in EPCA or
in 10 CFR 430.2 for the term ``safety shower showerhead,'' which is a
type of showerhead specifically excluded from coverage by EPCA. 42
U.S.C. 6291(31)(D). Because of this lack of a definition, confusion may
exist as to which products qualify for exclusion from coverage. DOE
notes that the current Occupational Safety and Health Administration
(OSHA) regulation addressing safety showers, which is located at 29 CFR
1910.151(c), does not define the term or specify required
characteristics of a safety shower showerhead. However, certain State
regulatory requirements that address safety showers use as a reference
American National Standards Institute (ANSI) Standard Z358.1, Emergency
Eyewash and Shower Equipment.\2\ This standard contains specific design
and performance criteria that safety showers must meet, such as flow
rate and accessibility, which may enable the establishment of a common
definition for the showerhead portion of a safety shower. DOE is
interested in receiving comments on whether such a definition is
needed, and if so, whether it is appropriate to define a safety shower
showerhead as a showerhead that is designed to meet the requirements of
ANSI Standard Z358.1, or if a more appropriate definition exists.
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\2\ For example, see Title 8 of the California Code of
Regulations, Section 5162, Emergency Eyewash and Shower Equipment.
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DOE requests comments on these proposed changes to the definitions
of showerhead and hand-held showerhead, its proposal not to include
body sprays in the proposed showerhead definition, its proposal that
body sprays that are components of shower towers be disabled during
testing, and on the need for a definition of safety shower showerhead.
2. Test Procedure for Showerhead Flow Control Insert
EPCA includes a provision that showerheads must meet the
requirements of section 7.4.3(a) of ASME A112.18.1M-1989, which
requires that if a flow control insert is used as a component of a
showerhead, the showerhead must be manufactured such that a pushing or
pulling force of 8 lbf or more is required to remove the flow control
insert. (42 U.S.C. 6295(j)(1)) DOE subsequently adopted this provision
in 10 CFR 430.32(p), and later updated that paragraph upon
incorporation by reference of ASME A112.19.1M-1996 to reflect that it
had been moved to section 7.4.4(a). This provision has been retained in
the updated A112.18.1-2011, but has been moved from section 7.4.4(a) to
section 4.11.1.
In the May 2012 NOPR, DOE did not propose to change this design
requirement, but requested comments and information on prospective
methods for verifying that the requirement in section 4.11.1 of ASME
A112.18.1-2011 has been met, as well as comments and information on
showerhead designs that may complicate verification of the force
requirement or make verification unnecessary. 77 FR at 31747.
Moen, PMI, Kohler, ICC, and Sloan Valve commented that DOE should
not develop a standardized test for flow control insert retention to
address the showerhead design requirement. These commenters noted that
it would be difficult to design a standardized test that could
accommodate different designs in the marketplace and that such a test
could hinder innovation of new products and make showerhead repair
difficult. (Moen, No. 4 at p. 2; PMI, No. 8 at p. 2; Kohler, No. 9 at
p. 3; Kohler, Public Meeting Transcript, No. 11 at p. 47; ICC, Public
Meeting Transcript, No. 11 at pp. 48-49; Sloan Valve, No. 12 at p. 2)
In contrast, NRDC recommended that DOE develop a standardized test
procedure to ensure that manufacturers produce showerheads with flow
control inserts that are not easily removed. (NRDC, Public Meeting
Transcript, No. 11 at pp. 47-48)
After receiving comments on this issue, DOE obtained 21 showerheads
to investigate the design requirement for retention of the flow control
insert. The selected showerheads included a variety of brands and
styles. In general, there were four basic flow control designs:
(1) Some showerheads contained a plastic disc insert, either with
or without an o-ring in the middle of the insert;
(2) Others contained a rubber disc insert;
(3) Others did not have any flow control insert; instead, flow
control was integral to the showerhead housing; and
(4) One showerhead's sealing gasket (i.e., the seal between the
showerhead
[[Page 20836]]
and the supply fitting) also functioned as the flow control mechanism.
Showerheads with integral flow control were found to automatically
meet the design requirements per A112.18.1-2011, section 4.11.1 because
these showerheads did not contain a flow control insert that could be
removed. The showerheads that used a sealing gasket as the flow control
mechanism were exempt from the design requirement because A112.18.1,
section 4.11.1 states that the design requirement does not apply if
significant leakage between the showerhead and supply fitting occurs as
a result of the flow control insert being removed, and these products
leak significantly from areas other than the spray face when used
without the gasket. In this context, DOE interprets the term ``leak
significantly'' to mean the visible emergence of water from parts of
the showerhead other than the spray face or nozzle that does not occur
when the flow control insert is installed, such as from the connection
between the showerhead and the plumbing fitting.
DOE then tested subsets of the remaining showerheads (i.e., those
with plastic disc inserts and rubber disc inserts) using two different
methods to determine the optimal method for determining whether the
flow control insert could be removed using a pushing or pulling force
of less than 8 pounds.
a. Pulling-Force Test
First, DOE conducted a pulling-force test, which involved the
following general steps, on a subset \3\ of the relevant showerheads:
(1) Removing (a) the showerhead's sealing gasket, which provides a seal
between the showerhead and supply fitting, and (b) the screen upstream
of the flow control insert; (2) securing the showerhead; (3) attaching
a clamp to the flow control insert that could withstand a force of at
least 20 lbf; (4) attaching a force transducer to the clamp, which was
capable of measuring a maximum force of 25 lbf on the flow control
insert; and (5) applying a consistent pulling force to the flow control
insert for between 10 and 20 seconds with the average pulling force
recorded at 0.5 second intervals.
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\3\ Four showerheads with plastic inserts were manufactured with
the insert embedded very in tightly in the housing, making removal
difficult enough that DOE deemed the test unnecessary for those
products; six showerheads with integral flow control in the fixture
housing were not tested; the showerhead with a sealing gasket as the
flow control was not tested because it is exempt from the design
requirement.
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Of the 10 showerheads subjected to the pulling-force test, three
flow control inserts (two plastic disc flow control inserts and one
rubber disc insert) were clearly removed with a pulling force of under
8 lbf, while two flow control inserts (both plastic disc inserts) were
removed with a force close enough to the 8 lbf level that it was
unclear whether the actual force required to remove the insert was more
or less than 8 lbf. Five showerheads that contained plastic disc flow
control inserts were tested and the inserts could not be removed with a
pulling force of 8 lbf.
b. Gravity Test
As a potential alternative to the pulling-force test, DOE developed
a gravity test that simplifies the pulling-force test by using a
calibrated 8 pound-mass (lbm) to exert a constant 8 lbf on the flow
control insert. This test, which is described in further detail in the
section below, eliminates the requirement for a force transducer and
data logger, limits cost burden, and ensures the test is easily
repeatable. Of the 5 units subjected to this test, 2 failed and 3
passed; the results were not inconclusive for any of the units.
c. Conclusions Based on DOE Testing
DOE's investigation and lessons learned from the preliminary
testing described above showed that, with respect to flow control
insert testing, there are three general categories of showerheads: (1)
Showerheads that contain a flow control insert that is also the sealing
gasket and are therefore exempt from the design requirement; (2)
showerheads with a flow control device that is an integral feature of
the housing and cannot be removed and are therefore exempt from the
showerhead design requirement; and (3) showerheads containing a flow
control insert where testing of the insert retention can be
accomplished using a pulling-style test. DOE found no showerheads for
which the flow control insert could be more easily removed using a
pushing force rather than a pulling force.
Thus, in this SNOPR, DOE proposes a simplified gravity pull-style
test procedure that will allow DOE to validate the statutory flow
control insert design requirement that is currently included in
manufacturers' certification reports. The proposed test method includes
the following steps: (1) Remove the showerhead's sealing gasket, which
provides a seal between the showerhead and supply fitting, and the
screen upstream of the flow control insert (however, if the sealing
gasket also functions as the flow control insert and would cause
visible leakage from areas other than the showerhead's spray face if
removed, then the showerhead would be exempted from the design
requirement and no further testing would be necessary); (2) attach a
clamp (or other grasping device) to the flow control insert such that a
force of at least 8 lbf can be applied without separating the clamp (or
other device) from the flow control insert (if a clamp or other
grasping device that would enable physical removal of the flow control
insert cannot be attached, then the showerhead meets the design
requirement and no further testing would be necessary); (3) secure the
showerhead such that the visible face of the flow control insert is
downward (e.g., the spraying face of the showerhead faces directly
upward) and a force of at least 8 lbf will not cause the showerhead to
move; (4) apply a pulling force using a combined 8 lbm (total combined
weight includes clamp, connecting linkage, and hanging mass) secured to
the clamp and lowered beneath the showerhead until the mass freely
hangs such that a downward 8 lbf is exerted on the flow control insert;
and (5) continue to apply the 8 lbf to the flow control insert for a
minimum of 60 seconds. The showerhead would be compliant with the
design requirement if, after this period has elapsed, the flow control
insert is completely retained in the showerhead housing with no
movement. In this SNOPR, DOE proposes the use of this test method as a
means to validate that showerheads meet the flow control insert design
requirement for situations in which compliance with the requirement is
in dispute. However, DOE is not proposing to mandate that this test
method be conducted by manufacturers as part of an initial
certification that a basic model of showerhead is in compliance with
this requirement.
DOE requests comments on the proposed test method for verifying the
retention requirement for the showerhead flow control insert,
specifically related to the practicality of the test method and any
potential impacts on showerhead design.
3. Test Procedure Amendment for Supply Fittings With Integral Body
Sprays
In light of DOE's proposal to exclude body sprays from the
definition of ``showerhead,'' DOE also proposes to revise the
showerhead test procedure located at Appendix S to subpart B of part
430 to include instructions for testing a single fitting that consists
of at least one showerhead and at least one integral body spray
(colloquially called a ``shower tower''). ASME A112.18.1, section
5.4.2.1 (part of section 5.4, Flow
[[Page 20837]]
Rate, which DOE proposed to incorporate by reference in the NOPR),
provides that a ``specimen'' to be tested shall ``have its standard
accessories installed, when tested for compliance with the maximum flow
rates.'' Because DOE is not proposing to include body sprays in the
definition of ``showerhead,'' DOE proposes to clarify in Appendix S
that the body spray portion of a ``shower tower'' should be turned off
during testing. DOE also proposes to clarify in Appendix S that where
the text of Appendix S conflicts with section 5.4, the text of Appendix
S controls.
4. Test Procedure Amendments for Gravity Flush Tank Water Closet Trim
Adjustments
In written comments submitted to DOE and in oral comments made
during the public meeting, NRDC urged DOE to consider requiring
manufacturers to adjust the tank trim components to the maximum flush
volume setting during testing. (NRDC, Public Meeting Transcript, No. 11
at pp. 70-71; NRDC, No. 14 at p. 3) In this context, tank trim refers
to the components in the tank that can be adjusted by the consumer such
as the water level, fill valve timing, and related components. While
DOE's current test procedure does not address this issue, ASME
A112.19.2-2008, section 7.1.2, specifies that for gravity flush tank
water closets, water level in the tank and fill time shall be adjusted
in accordance with the manufacturer's instructions and specifications
at each test pressure. Table 5 in ASME A112.19.2-2008 specifies that
``[a]djustments to tank trim components shall be permitted only when
changes to test pressures are indicated'' and that ``[n]o adjustments
shall be allowed between tests employing like pressures.'' These
provisions ensure that once the trim is set to the manufacturer's
specifications, the water level and fill time adjustments remain the
same for tests that use like pressures, which simulates how water
closets are used in real world application.
After receiving comments from NRDC, DOE investigated water closet
manufacturers' instructions on gravity flush tank trim adjustments.
Based upon a review of installation instructions for representative
models from eight separate manufacturers, DOE found that only one
manufacturer did not include specific instructions regarding the
adjustments made to the tank water level. Based on these findings, DOE
believes it to be likely that the majority of manufacturers'
installation instruction manuals for gravity flush tank water closets
specify the tank water level and also provide directions on adjusting
the tank's water level. However, DOE found that few manufacturers
provide information on the recommended adjustment of other trim
components, such as the flapper valve or fill valve. Section 7.1.2 of
ASME A112.19.2-2008 only specifies adjustments made to the tank water
level and fill time and does not specify adjustments made to other trim
components such as the flapper valve. Taking into account the variety
of water closet designs on the market, it is unclear whether the impact
on flush volume of trim adjustments that are not specified in
manufacturer's instructions or in ASME A112.19.2-2008 is significant.
Based on these findings, DOE proposes in this SNOPR to amend the
test procedures for gravity flush tank toilets to require that, at each
test pressure specified in Table 5 of ASME A112.19.2-2008, trim
components of gravity flush tank water closets that can be adjusted to
cause an increase in flush volume, including (but not limited to) the
flapper valve, fill valve, and float, would be set in accordance with
the printed installation instructions supplied by the manufacturer. For
products with instructions that do not specify trim setting
adjustments, DOE would require that these trim components be adjusted
to the maximum water use setting so that the maximum flush volume is
produced without causing the water closet to malfunction or leak. In
this context, DOE interprets ``malfunction or leak'' to mean that the
product is otherwise unable to meet the requirements of the ASME
A112.19.2 standard for basic functionality. In addition, the water
level in the tank would be set to the maximum level indicated in the
printed installation instructions supplied by the manufacturer or the
water line indicated on the tank itself, whichever is higher. If the
product's installation instructions or the water closet tank do not
indicate a water level, DOE would require that the water level be
adjusted to 1 0.1 inches below the top of the overflow
tube or 1 0.1 inches below the top rim of the water-
containing vessel (for gravity flush tank water closets that do not
contain an overflow tube) for each designated pressure specified in
Table 5 of ASME A112.19.2-2008.
DOE requests comments on the proposed amendment to the gravity
flush tank water closest test procedures, specifically with respect to
the potential effects on flush volume of tank trim adjustments, any
impact on water closet design that may occur due to the proposed
amendments, including its interpretation of the term ``malfunction or
leak.''
5. Static Test Pressure for Flushometer Valve Siphonic and Blowout
Water Closets
In written comments submitted to DOE, NRDC and the Appliance
Standards Awareness Project (ASAP) recommended that DOE evaluate the
effect of averaging test results that have been obtained at different
test pressures of siphonic flushometer style water closets, which is
the general method used in both the ASME A112.19.6-1995 standard
referenced in the DOE test procedure for water closets and in the newer
ASME A112.19.2-2008 procedure. (NRDC/ASAP, No. 14 at p. 2) NRDC/ASAP
further suggested that DOE should require reporting of the higher water
consumption value obtained by averaging three tests at 80 psi and
averaging three tests at 35 psi for siphonic flushometer water closets
and, at a minimum, should discard the 2 to 1 weighting of test results
at the lower pressure. (NRDC/ASAP, No. 14 at p. 2) Although not
specifically mentioned by NRDC and ASAP in their comments, DOE also
requires an additional low pressure test at 45 psi for blowout
flushometer water closets that results in a 2 to 1 weighting of
results.
DOE agrees that use of the 2 to 1 ratio for averaging water
consumption of flushometer valve siphonic and blowout water closets at
the pressures currently indicated in Table 5 of ASME A112.19.2-2008
potentially could lead to results that are not representative across a
range of pressures if DOE were to incorporate by reference this test
method. Further, DOE notes that the weighting of two low pressure tests
to one high pressure test presented in Table 5 of ASME A112.19.2-2008
diverges from previous versions of the ASME test method because tank
type water closets are tested at three distinct static pressures, as
were flushometer water closets in the previous version of the standard.
For these reasons, DOE proposes to amend 10 CFR part 430, appendix T,
``Test Measurement,'' to require that water consumption tests be
conducted at two static pressures, with three tests at each pressure
(i.e., six total tests, rather than nine). For flushometer valve water
closets with a siphonic bowl, DOE proposes that the test pressures be
80 psi and 35 psi. For flushometer valve water closets with a blowout
bowl, DOE proposes that the test pressures be 80 psi and 45 psi.
According to this proposal, the test shall be run three times at each
pressure as
[[Page 20838]]
specified in section 7.4.3, ``Procedure,'' of ASME Standard A112.19.2-
2008.
DOE requests comments on the proposal to amend the number of
required tests for flushometer valve siphonic and blowout bowl water
closets to require three tests at each of two pressures rather than
three tests at each of three pressures.
6. Testing and Reporting of Dual-Flush Water Closets
In the May 2012 NOPR, DOE proposed a test method to account for the
reduced average water use of dual-flush water closets, which are
capable of being flushed in either a full volume flush mode or in a
reduced volume mode. Under the proposed test procedure, the flush
volume of the reduced flush would be measured using section 7.4 of ASME
A112.19.2-2008 in the same manner as the full flush, and the average
representative water use would be calculated using the composite
average of two reduced flushes and one full flush. 77 FR at 31746. This
proposed method was based upon the test method used by the
Environmental Protection Agency (EPA) WaterSense program \4\ for
measuring the flush volume of dual-flush water closets and used a
weighted average of the full and reduced flush volumes. However, DOE
did not propose to make this test method the required means for testing
dual-flush water closets for the purposes of certification in 10 CFR
part 429. Rather, the intent in including this test method was to
provide manufacturers with a potential means to evaluate the
representative water use of these products under conditions of expected
consumer use for the purposes of labeling and other representations.
The test method required for certification would remain the standard
full-flush volume test for products that do not have a dual-flush
capability.
---------------------------------------------------------------------------
\4\ WaterSense is a voluntary partnership program administered
by the EPA which, among other activities, promotes water
conservation by providing certification and labeling for water
consuming products, including water closets, that meet certain water
conservation standards. Further information is available at http://www.epa.gov/WaterSense/index.html.
---------------------------------------------------------------------------
DOE received several comments in response to the NOPR that opposed
incorporation of the proposed test method for dual-flush products.
Alliance for Water Efficiency (AWE), Kohler, Moen, and Sloan Valve
commented that because of DOE's statutory authority, which addresses
only the maximum water use of water closets, dual-flush water closets
should only be tested in full-flush mode in accordance with ASME
A112.19.2. (AWE, No. 13 at p.2; Kohler, No. 9 at pp. 2-3; Moen, No. 4,
p. 2; Sloan Valve, No. 12, p. 2). Also, AWE, ICC, Kohler, Maximum
Performance Testing (MaP), Moen, NRDC, and Sloan Valve stated that the
weighted average approach was unproven and that the particular ratio
required further evaluation to confirm its representativeness. (AWE,
No. 13 at p. 2; ICC, Public Meeting Transcript No. 11 at pp. 36-37;
Kohler, No. 9 at pp. 2-3; MaP, No. 10 at pp. 3-4; Moen, No. 4 p. 2;
NRDC, No. 14 at pp. 3-4; Sloan Valve, Public Meeting Transcript, No. 11
at pp. 38-39) In addition, Kohler, Moen, and Sloan Valve stated that
confusion in the marketplace might result if DOE were to issue a method
different from the WaterSense method to determine the representative
average flush volume for dual-flush water closets. (Kohler, No. 9 at
pp. 2-3; Moen, No. 4 at p. 2; Sloan Valve, No. 12 at p. 2)
In response to these comments, DOE proposes in today's notice not
to include a dual-flush test method in appendix T of subpart B of 10
CFR part 430 and instead to indicate specifically in section 429.30 of
10 CFR part 429 that the flush volume to be reported to DOE in
certifications of compliance for water closets is the full-flush
volume. DOE will continue to evaluate the merits of a weighted average
approach to measuring the representative water use of dual-flush
products and may consider proposing a revised test method in a future
rulemaking. DOE notes that 42 U.S.C. 6293(c) prohibits making
representations with respect to the water use of a covered product
unless such product has been tested in accordance with the DOE test
procedure and the representation fairly discloses the results of such
testing.
B. Supplementary Plumbing Requirements
1. Definition of a Basic Model for Water Closets and Urinals
In the May 2012 NOPR, DOE proposed to retain the existing
definition of a basic model as it applies to water closets and urinals,
but emphasized that the manner in which individual models may be
grouped together as basic models for purposes of reporting water
consumption in accordance with 10 CFR 429.12 should be based on the
maximum volume for a given bowl (or urinal body) and the valve with
which it is designed to operate. 77 FR at 31748 (May 30, 2012). In
other words, by certifying a given pairing of water closet bowl and
valve (or tank) or urinal body and valve as a basic model under the
existing certification and compliance framework, the manufacturer would
be certifying that the pairing on which that basic model's rating is
based is the maximum flush volume that model of water closet or urinal
body is designed to receive, and that it could not be paired with a
flushing device or tank that would provide a higher flush volume and
still function properly.
During the July 2012 public meeting, NRDC commented that it
remained unclear how DOE expects the valve/bowl pairing combination to
work in practice. NRDC pointed to DOE's own NOPR language indicating
that different valve and china combinations could result in different
flush volumes. (NRDC, Public Meeting Transcript, No. 11 at pp. 60-61)
In follow-up written comments submitted jointly, NRDC and ASAP stated
that DOE's explanation of the compliance certification in the NOPR
failed to clarify how a fixture manufacturer can establish that its
bowl cannot be paired with a flushing device that would provide a
higher flush volume and still function properly. (NRDC/ASAP, No. 14 at
p. 6) NRDC stated that because DOE is aware of the variability of flush
volume based on the valve/bowl combination, it must find a way to
verify that products shipped in commerce can reliably meet the
standard. Finally, NRDC and ASAP suggested that DOE should consider
expanding the definition of ``tested combination'' in 10 CFR 430.2 to
include information specific to water closets and urinals, along with
their associated flushing devices. (NRDC/ASAP, No. 14 at p. 6) During
the public meeting, NRDC and ASAP also inquired whether new valves
shipped in commerce that are not paired with a bowl are covered
products by DOE and require certification. (NRDC, Public Meeting
Transcript, No. 11 at p. 62; ASAP, Public Meeting Transcript, No. 11 at
p. 64).
Based on these comments, DOE further investigated the issues
revolving around the basic model definition and certification of water
closets and urinals. First, the definitions of a water closet and
urinal per ASME A112.19.2 and 10 CFR 430.2 state that these products
are receiving vessels that, upon actuation, convey waste through a trap
to a drainage system. The flushing device, such as a flushometer valve,
is not considered a water closet or urinal, and therefore is not itself
a covered product under DOE's regulations. The water closet bowl or
urinal body, which is covered by DOE regulations, is designed to
receive a specified volume of water per flush provided by the
flushometer valve. Under the current
[[Page 20839]]
general certification requirements in 10 CFR 429.12 and product-
specific sampling and reporting requirements in 10 CFR 429.30 (429.31
for urinals), manufacturers of flushometer water closets (and urinals)
must only certify the water closet bowl (or urinal body) based on data
obtained from testing using the DOE test procedure, and are not
required to report information on the flushometer valve that was paired
with the fixtures during testing. However, a water closet bowl (or
urinal) must be paired with a flushometer valve device to function
properly. Without the valve, the water closet could not be actuated and
could not convey waste into the drainage system, thus preventing it
from meeting the DOE definition of a water closet. In addition, water
closet bowls and urinals are designed for a specified flush volume, and
thus must be paired with a valve that is designed to provide this
specific volume.
As a result of the comment made by NRDC, DOE re-examined ASME
A112.19.2-2008 and determined that a provision related to the test
setup for flushometer valves in section 7.1.5, which DOE had not
proposed for incorporation by reference in the May 2012 NOPR, partially
addresses this issue. This section describes the steps to standardize
the water supply system for testing water closets. Section 7.1.5.2,
which covers standardization for flushometer water closets, clearly
states that a flushometer valve must be connected to the test bowl and
specifies that while conducting the water consumption test, the valve
is required to maintain a peak flow rate. Incorporating this provision
will ensure that a water closet is paired with a flushometer valve that
produces the required maximum flush volume during the water consumption
test. Therefore, to clarify the definition of basic model for
flushometer water closets, DOE proposes to incorporate by reference
section 7.1.5 of ASME A112.19.2-2008.
Similar steps for standardizing the water supply for flushometer
urinals are contained in section 8.2 of ASME A112.19.2-2008. DOE
proposed to incorporate by reference this section of the ASME standard
in the May 2012 NOPR, and did not receive any comments opposing the
proposal. 77 FR at 31745 (May 30, 2012).
Further, DOE proposes changes to the certification requirements in
10 CFR 429.30(b)(2) for water closets and 10 CFR 429.31(b)(2) for
urinals to require manufacturers to identify in their certification
reports the flushometer valve that was used during the water
consumption test. According to this proposal, the flushometer valve
identified in the certification report must represent the flush volume
of any other valve with the same flush volume rating. Manufacturers who
wish to advertise flush volume ratings of high-efficiency flushometer
water closets and urinals would be able to do so as long as the rating
is based upon a pairing of the model with a valve with which it is
designed to operate, the product pairing has been tested in accordance
with test methods in ASME A112.19.2-2008, and the certification reports
properly identify the flushometer valve used during the water
consumption test.
DOE requests comments on this interpretation of the definition of a
basic model of water closet and urinal and the associated proposed
amendments to the certification requirements.
2. Minor Editorial Changes
In reviewing the certification requirements applicable to the
products addressed in this proposed rule, DOE noted that the current
reporting requirement for urinals in 10 CFR 429.31(b)(2) requires
reporting of water consumption for trough-type urinals in gpm. Since
the Federal water consumption standard for urinals in 10 CFR 430.32(r),
including trough-type urinals, is expressed in units of gallons per
flush (gpf), DOE believes that the appropriate units of measure for
reporting water consumption of trough-type urinals also should be
gallons per flush. Accordingly, DOE is proposing in this notice to
amend the existing language of 10 CFR 429.31(b)(2) to reflect that the
water consumption of trough-type urinals should be reported in gallons
per flush.
DOE also noted that the amendments to the certification
requirements for showerheads proposed in the May 2012 NOPR did not
reflect the proposed change to the language of 10 CFR 430.32(p). The
proposed language there no longer references an ASME standard. Instead,
it explains the design requirement. Therefore, the certification
requirements for showerheads in 10 CFR 429.29 should no longer
reference any ASME standard, but should instead reference the
requirements laid out in 430.32(p). Accordingly, DOE is proposing to
reference 430.32(p) in its certification requirements for showerheads.
In addition, because the declaration that a showerhead meets the
relevant design requirement is public information, DOE proposes to move
this certification requirement into 429.29(b)(2) rather than retaining
it in a separate section, 429.29(b)(3).
III. Procedural Issues and Regulatory Review
The regulatory reviews for this proposed rule are identical to
those conducted for the May 2012 NOPR. Please see the May 2012 NOPR for
additional details. 77 FR at 31749-31752 (May 30, 2012). With respect
to review under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.),
DOE is proposing a test method to validate that the showerhead flow
control insert design requirement has been satisfied; however, the use
of the test during certification is optional. Because manufacturers are
not required to perform the proposed test to meet DOE's certification
requirements, DOE does not expect any additional testing burden or
cost. Thus, DOE continues to tentatively conclude and certify that the
proposed rule would not have a significant economic impact on a
substantial number of small entities. Accordingly, DOE will transmit
the certification and supporting statement of factual basis to the
Chief Counsel for Advocacy of the Small Business Administration for
review under 5 U.S.C. 605(b).
IV. Public Participation
A. Submission of Comments
DOE will accept comments, data, and information regarding this
proposed rule no later than the date provided in the DATES section of
this proposed rule. Interested parties may submit comments using any of
the methods described in the ADDRESSES section of this proposed rule.
Submitting comments via regulations.gov. The regulations.gov Web
page will require you to provide your name and contact information.
Your contact information will be viewable to DOE Building Technologies
staff only. Your contact information will not be publicly viewable
except for your first and last names, organization name (if any), and
submitter representative name (if any). If your comment is not
processed properly because of technical difficulties, DOE will use this
information to contact you. If DOE cannot read your comment due to
technical difficulties and cannot contact you for clarification, DOE
may not be able to consider your comment.
However, your contact information will be publicly viewable if you
include it in the comment or in any documents attached to your comment.
Any information that you do not want to be publicly viewable should not
be included in your comment or in any document attached to your
comment. Persons viewing comments will see only
[[Page 20840]]
first and last names, organization names, correspondence containing
comments, and any documents submitted with the comments.
Do not submit to regulations.gov information for which disclosure
is restricted by statute, such as trade secrets and commercial or
financial information (hereinafter referred to as Confidential Business
Information (CBI)). Comments submitted through regulations.gov cannot
be claimed as CBI. Comments received through the Web site will waive
any CBI claims for the information submitted. For information on
submitting CBI, see the ``Confidential Business Information'' section.
DOE processes submissions made through regulations.gov before
posting. Normally, comments will be posted within a few days of being
submitted. However, if large volumes of comments are being processed
simultaneously, your comment may not be viewable for up to several
weeks. Please keep the comment tracking number that regulations.gov
provides after you have successfully uploaded your comment.
Submitting comments via email, hand delivery, or mail. Comments and
documents submitted via email, hand delivery, or mail also will be
posted to regulations.gov. If you do not want your personal contact
information to be publicly viewable, do not include it in your comment
or any accompanying documents. Instead, provide your contact
information on a cover letter. Include your first and last names, email
address, telephone number, and optional mailing address. The cover
letter will not be publicly viewable as long as it does not include any
comments.
Include contact information each time you submit comments, data,
documents, and other information to DOE. If you submit via mail or hand
delivery, please provide all items on a CD, if feasible. It is not
necessary to submit printed copies. No facsimiles (faxes) will be
accepted.
Comments, data, and other information submitted to DOE
electronically should be provided in PDF (preferred), Microsoft Word or
Excel, WordPerfect, or text (ASCII) file format. Provide documents that
are not secured, are written in English, and are free of any defects or
viruses. Documents should not contain special characters or any form of
encryption and, if possible, they should carry the electronic signature
of the author.
Campaign form letters. Please submit campaign form letters by the
originating organization in batches of between 50 to 500 form letters
per PDF or as one form letter with a list of supporters' names compiled
into one or more PDFs. This reduces comment processing and posting
time.
Confidential Business Information. Any person submitting
information that he or she believes to be confidential and exempt by
law from public disclosure should submit via email, postal mail, or
hand delivery two well-marked copies: one copy of the document marked
confidential including all the information believed to be confidential,
and one copy of the document marked non-confidential with the
information believed to be confidential deleted. Submit these documents
via email or on a CD, if feasible. DOE will make its own determination
about the confidential status of the information and treat it according
to its determination. 10 CFR 1004.11(e).
Factors of interest to DOE when evaluating requests to treat
submitted information as confidential include: (1) A description of the
items; (2) whether and why such items are customarily treated as
confidential within the industry; (3) whether the information is
generally known by or available from other sources; (4) whether the
information has previously been made available to others without
obligation concerning its confidentiality; (5) an explanation of the
competitive injury to the submitting person which would result from
public disclosure; (6) when such information might lose its
confidential character due to the passage of time; and (7) why
disclosure of the information would be contrary to the public interest.
It is DOE's policy that all comments may be included in the public
docket, without change and as received, including any personal
information provided in the comments (except information deemed to be
exempt from public disclosure).
B. Issues on Which DOE Seeks Comment
Although DOE welcomes comments on any aspect of this proposal, DOE
is particularly interested in receiving comments and views of
interested parties concerning the following issues:
1. DOE requests comments on the proposed definitions of showerhead
and hand-held showerhead, its proposal to remove body sprays from the
proposed showerhead definition, its proposal that body sprays that are
components of shower towers be disabled during testing, and on the need
for a definition of safety shower showerhead.
2. DOE requests comments on the proposed test method for verifying
the retention requirement for the showerhead flow control insert,
specifically related to the practicality of the test method and any
potential impacts on showerhead design.
3. DOE requests comments on the proposed amendment to the gravity
flush tank water closet test procedure, specifically related to
potential effects on flush volume of tank trim adjustments and any
impact on water closet design resulting from the proposed amendments,
including DOE's interpretation of the term ``malfunction or leak.''
4. DOE requests comments on the proposal to amend the number of
required tests for flushometer valve siphonic and blowout bowl water
closets to require three tests at each of two pressures rather than
three tests at each of three pressures.
5. DOE requests comments on its interpretation of the definition of
a basic model of water closet and urinal and the associated proposed
amendments to the certification requirements.
V. Approval of the Office of the Secretary
The Secretary of Energy has approved publication of this proposed
rule.
List of Subjects
10 CFR Part 429
Administrative practice and procedure, Confidential business
information, Energy conservation, Imports, Intergovernmental relations,
Small businesses.
10 CFR Part 430
Administrative practice and procedure, Confidential business
information, Energy conservation, Imports, Incorporation by reference,
Intergovernmental relations, Small businesses.
Issued in Washington, DC, on April 2, 2013.
Kathleen B. Hogan,
Deputy Assistant Secretary for Energy Efficiency, Energy Efficiency and
Renewable Energy.
For the reasons stated in the preamble, DOE proposes to amend parts
429 and 430 of chapter II of title 10 of the Code of Federal
Regulations, as set forth below:
PART 429--CERTIFICATION, COMPLIANCE, AND ENFORCEMENT FOR CONSUMER
PRODUCTS AND COMMERCIAL AND INDUSTRIAL EQUIPMENT
0
1. The authority citation for part 429 continues to read as follows:
Authority: 42 U.S.C. 6291-6317.
[[Page 20841]]
0
2. Section 429.29 is amended by revising paragraph (b)(2) and removing
paragraph (b)(3) to read as follows:
Sec. 429.29 Showerheads.
* * * * *
(b) * * *
(2) Pursuant to Sec. 429.12(b)(13), a certification report shall
include the following public product-specific information: The maximum
water use in gallons per minute (gpm) rounded to the nearest 0.1 gpm,
the maximum flow water pressure in pounds per square inch (psi),
whether the showerhead is exempt from the requirements of Sec.
430.32(p) pertaining to mechanical retention of the flow-restricting
insert, and a declaration that the showerhead meets the requirements of
Sec. 430.32(p) pertaining to mechanical retention of the flow-
restricting insert, if applicable.
0
3. Section 429.30 is amended by revising paragraph (b)(2) to read as
follows:
Sec. 429.30 Water closets.
* * * * *
(b) * * *
(2) Pursuant to Sec. 429.12(b)(13), a certification report shall
include the following public product-specific information: The maximum
water use in gallons per flush (gpf), rounded to the nearest 0.01
gallon. For flushometer water closets, the brand name and individual
model number of the flushometer valve used during certification testing
shall be included in the certification report. For dual-flush water
closets, the maximum water use to be reported is the flush volume
observed when tested in the full-flush mode.
0
4. Section 429.31 is amended by revising paragraph (b)(2) to read as
follows:
Sec. 429.31 Urinals.
* * * * *
(b) * * *
(2) Pursuant to Sec. 429.12(b)(13), a certification report shall
include the following public product-specific information: The maximum
water use in gallons per flush (gpf), rounded to the nearest 0.01
gallon; and, for trough-type urinals, the maximum water use in gallons
per flush (gpf), rounded to the nearest 0.01 gallon, and the length of
the trough in inches (in). For flushometer urinals, the brand name and
individual model number of the flushometer valve used during
certification testing shall be included in the certification report.
PART 430--ENERGY CONSERVATION PROGRAM FOR CONSUMER PRODUCTS
0
5. The authority citation for part 430 continues to read as follows:
Authority: 42 U.S.C. 6291-6309; 28 U.S.C. 2461 note.
0
6. Section 430.2 is amended by adding, in alphabetical order, a
definition for ``hand-held showerhead'' and by revising the definition
of ``showerhead'' to read as follows:
Sec. 430.2 Definitions.
* * * * *
Hand-held showerhead means a showerhead that can be hand-held or
fixed in place for the purpose of spraying water onto a bather.
* * * * *
Showerhead means a component of a supply fitting, or set of
components distributed in commerce for attachment to a single supply
fitting, for spraying water onto a bather, typically from an overhead
position, including hand-held showerheads, but excluding safety shower
showerheads.
* * * * *
0
7. Appendix S to subpart B of part 430 is amended by adding a note
after the heading, revising section 2.b, and adding section 3, to read
as follows:
Appendix S to Subpart B of Part 430--Uniform Test Method for Measuring
the Water Consumption of Faucets and Showerheads
Note: Any representation related to water consumption of
showerheads or faucets made after [insert date 180 days after date
of publication of faucets and showerheads test procedure final rule]
must be made based upon results generated using this test procedure.
Any representation related to water consumption of showerheads or
faucets made between [insert date 30 days after date of publication
of faucets and showerheads test procedure final rule] and [insert
date 180 days after date of publication of faucets and showerheads
test procedure final rule] must be based upon results generated
either under this test procedure or upon the test procedure as it
appeared at 10 CFR part 430, subpart B, appendix S, in the 10 CFR
parts 200 to 499 edition revised as of January 1, 2012.
* * * * *
2. * * *
* * * * *
b. Showerheads--The test procedures to measure the water flow
rate for showerheads, expressed in gallons per minute (gpm) or
liters per minute (L/min), shall be conducted in accordance with the
test requirements specified in section 5.4, Flow Rate, of the ASME/
ANSI Standard A112.18.1 (incorporated by reference, see Sec.
430.3). Measurements shall be recorded at the resolution of the test
instrumentation. Calculations shall be rounded off to the same
number of significant digits as the previous step. The final water
consumption value of each tested unit shall be rounded to one
decimal place. For showerheads or showerhead assemblies that are a
component of a single supply fitting with integral body sprays, the
body spray(s) shall be disabled for the test.
3. Showerhead Flow Control Insert Test.
The following test method is for verification of compliance with
the requirements of 10 CFR 430.32(p) pertaining to retention of
showerhead flow control inserts. This test is not required for
certification under 10 CFR 429.12 but may be used to verify
compliance with those requirements.
(a) General provisions:
(1) If removal of the flow control insert would cause
significant leakage between the showerhead and the supply fitting,
the showerhead is exempt from the flow control insert design
requirement.
(2) If the means of controlling flow rate is not physically
removable, the showerhead is exempt from the flow control insert
design requirement.
(b) Test method:
If items in section (3)(a) of this appendix do not apply,
perform the following steps:
(1) Remove the showerhead's sealing gasket, which provides a
seal between the showerhead and supply fitting, and the screen
upstream of the flow control insert (if present).
(2) Attach a clamp (or other grasping device) to the flow
control insert such that a force of at least 8 lbf can be applied
without separating the clamp (or other grasping device) from the
flow control insert.
(3) Secure the showerhead such that the visible face of the flow
control insert is directly downward and a force of at least 8 lbf
will not cause the showerhead to move.
(4) Apply a pulling force using a combined 8 pound-mass (lbm)
( 0.4 lbm) (total combined weight including clamp,
connecting linkage, and hanging mass) secured to the clamp and
lowered beneath the showerhead at a rate of no more than 1 inch per
second until the mass freely hangs such that a downward 8 lbf is
exerted on the flow control insert.
(5) Continue to apply the 8 lbf to the flow control insert for a
minimum of 60 seconds.
(c) Determination:
If the flow control insert is retained in the showerhead after
performing sections (3)(b)(1) through (5) of this appendix, the
showerhead complies with the design requirement.
0
8. Appendix T to subpart B of part 430 is amended by adding a note
after the heading and revising sections 2 and 3, to read as follows:
Appendix T to Subpart B of Part 430--Uniform Test Method for Measuring
the Water Consumption of Water Closets and Urinals
Note: Any representation related to water consumption of water
closets or urinals made
[[Page 20842]]
after [insert date 180 days after date of publication of faucets and
showerheads test procedure final rule] must be made based upon
results generated using this test procedure. Any representation
related to water consumption of water closets or urinals made
between [insert date 30 days after date of publication of water
closets and urinals test procedure final rule] and [insert date 180
days after date of publication of water closets and urinals test
procedure final rule] must be based upon results generated either
under this test procedure or upon the test procedure as it appeared
at 10 CFR part 430, subpart B, appendix T, as contained in the 10
CFR parts 200 to 499 edition revised as of January 1, 2012.
* * * * *
2. Test Apparatus and General Instructions
a. The test apparatus and instructions for testing water closets
shall conform to the requirements specified in section 7.1,
``General,'' in sections 7.1.1, 7.1.2, 7.1.3, 7.1.4, and 7.1.5 of
ASME A112.19.2 (incorporated by reference, see Sec. 430.3).
Measurements shall be recorded at the resolution of the test
instrumentation. Calculations of water consumption for each tested
unit shall be rounded off to the same number of significant digits
as the previous step.
b. The test apparatus and instructions for testing urinals shall
conform to the requirements specified in section 8.2, ``Test
Apparatus and General Instructions,'' of ASME A112.19.2-2008
(incorporated by reference, see Sec. 430.3). Measurements shall be
recorded at the resolution of the test instrumentation. Calculations
of water consumption for each tested unit shall be rounded off to
the same number of significant digits as the previous step.
3. Test Measurement
a. Water closets:
(i) Measurement of water flush volume: The measurement of the
water flush volume for water closets, expressed in gallons per flush
(gpf) or liters per flush (Lpf), shall be conducted in accordance
with the test requirements specified in section 7.4, ``Water
Consumption Test,'' of ASME A112.19.2 (incorporated by reference,
see Sec. 430.3).
(ii) Static pressure requirements: The water consumption tests
of siphonic and blowout water closets shall be conducted at two
static pressures. For flushometer valve water closets with a
siphonic bowl, the test pressures shall be 80 psi and 35 psi. For
flushometer valve water closets with a blowout bowl, the test
pressures shall be 80 psi and 45 psi. The test shall be run three
times at each pressure as specified in section 7.4.3, ``Procedure,''
of ASME A112.19.2 (incorporated by reference, see Sec. 430.3).
(iii) Flush volume and tank trim component adjustments: For
gravity flush tank water closets, trim components that can be
adjusted to cause an increase in flush volume, including (but not
limited to) the flapper valve, fill valve, and float, shall be set
in accordance with the printed installation instructions supplied by
the manufacturer. If the installation instructions for the model to
be tested do not specify trim setting adjustments, these trim
components shall be adjusted to the maximum water use setting so
that the maximum flush volume is produced without causing the water
closet to malfunction or leak. The water level in the tank shall be
set to the maximum water line designated in the printed installation
instructions supplied by the manufacturer or the designated water
line on the tank itself, whichever is higher. If the printed
installation instructions or the water closet tank do not indicate a
water level, the water level shall be adjusted to 1 0.1
inches below the top of the overflow tube or 1 0.1
inches below the top rim of the water containing vessel (for gravity
flush tank water closets that do not contain an overflow tube) for
each designated pressure specified in Table 5 of ASME A112.19.2
(incorporated by reference, see Sec. 430.3).
[FR Doc. 2013-08073 Filed 4-5-13; 8:45 am]
BILLING CODE 6450-01-P